Afd21 v Minister for Home Affairs

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FEDERAL COURT OF AUSTRALIA

AFD21 v Minister for Home Affairs [2021] FCA 4

File number(s): WAD 201 of 2018
Judgment of: SNADEN J
Date of judgment: 22 January 2021
Catchwords: MIGRATION – cancellation of visa on character grounds – application for revocation of decision – non-refoulement obligations – risk of harm – role of non-refoulement obligations in cancellation revocation decisions – whether Minister failed to consider factual matters raised by the applicant – whether the Minister made a finding for which there was no rational and probative evidence – no jurisdictional error – application dismissed
Legislation: Migration Act 1958 (Cth) – ss 36, 476A, 501 and 501CA
Cases cited:

Ali v Minister for Home Affairs (2020) 380 ALR 393

Applicant WAEE v Minister for Immigration and Multicultural and Indigenous Affairs (2003) 236 FCR 593

AWT15 v Minister for Immigration and Border Protection [2017] FCA 512

AYY17 v Minister for Immigration and Border Protection (2018) 261 FCR 503

CAR15 v Minister for Immigration and Border Protection (2019) 272 FCR 131

Carrascalao v Minister for Immigration and Border Protection (2017) 252 FCR 352

DGI19 v Minister for Home Affairs [2019] FCA 1867

DOB18 v Minster for Home Affairs (2019) 269 FCR 636

DQM18 v Minister for Home Affairs [2020] FCAFC 110

GBV18 v Minister for Home Affairs (2020) 274 FCR 202

Guclukol v Minister for Home Affairs [2020] FCA 61

Hands v Minister for Immigration and Border Protection (2018) 267 FCR 628

Hernandez v Minister for Home Affairs [2020] FCA 415

Hong v Minister for Immigration (2019) 269 FCR 47

Hossain v Minister for Immigration and Border Protection (2018) 264 CLR 123

Ibrahim v Minister for Home Affairs (2019) 270 FCR 12

Kasupene v Minister for Immigration & Citizenship (2008) 49 AAR 77

Minister for Home Affairs v Buadromo (2018) 267 FCR 320

Minister for Home Affairs v Omar (2019) 272 FCR 589

Minister for Immigration and Border Protection v BHA17 (2018) 260 FCR 523

Minister for Immigration and Border Protection v Maioha (2018) 267 FCR 643

Minister for Immigration and Border Protection v SZMTA (2019) 264 CLR 421

Minister for Immigration and Citizenship v Li (2013) 249 CLR 332

Minister for Immigration and Citizenship v SZMDS (2010) 240 CLR 611

Minister for Immigration, Citizenship, Migrant Services and Multicultural Affairs v CTB19 [2020] FCAFC 166

MZXLB v Minister for Immigration and Citizenship [2007] FCA 1588

NABE v Minister for Immigration and Multicultural and Indigenous Affairs (2004) 144 FCR 1

Navoto v Minister for Home Affairs [2019] FCAFC 135

Ogbonna v Minister for Immigration and Border Protection (2018) 261 FCR 385

Sowa v Minister for Home Affairs (2019) 369 ALR 389

Division: General Division
Registry: Western Australia
National Practice Area: Administrative and Constitutional Law and Human Rights
Number of paragraphs: 66
Date of hearing: 26 May 2020
Counsel for the Applicant: Mr N Wood
Solicitor for the Applicant: Asylum Seeker Resource Centre
Counsel for the Respondent: Mr G Johnson
Solicitor for the Respondent: Sparke Helmore Lawyers

ORDERS

WAD 201 of 2018
BETWEEN:

AFD21

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Details
Case
[2021] FCA 4
Decision Date

CaseChat Overview and Summary

In the Federal Court of Australia, the case of Afd21 v Minister for Home Affairs involved an application for judicial review of a decision by the Minister for Home Affairs to decline the revocation of a visa cancellation. The applicant, Afd21, contested the decision on the grounds that the Minister failed to consider the risks of harm he would face if returned to Burundi and did not genuinely consider his submissions about the risks of harm. Additionally, Afd21 argued that the Minister made a finding for which there was no rational or probative evidence. The case required the court to determine whether the Minister had failed to consider the applicant's contentions adequately and whether the Minister's conclusion that the applicant would integrate back into Burundi society was supported by evidence.

The court examined the legislative framework governing visa cancellation on character grounds and the Minister's decision-making process. It was necessary to assess whether the Minister had overlooked the applicant's claims about the risks he would face in Burundi and whether the Minister genuinely considered these risks. The court also needed to evaluate whether the Minister's finding that the applicant would integrate back into Burundi society was supported by evidence.

The court concluded that the Minister had considered the applicant's contentions and that there was no evidence of a failure to genuinely consider them. The court found that the Minister did not make a finding for which there was no rational or probative evidence, particularly regarding the applicant's integration into Burundi society. The court did not find any jurisdictional error in the Minister's decision and dismissed the application.

The final orders of the court were that the application be dismissed and that the applicant pay the respondent's costs of the application, to be assessed according to the court's Costs Practice Note.

Orders

Orders of the court

1. The application be dismissed.

2. The applicant pay the respondent’s costs of the application, to be assessed in default of agreement in accordance with the court’s Costs Practice Note (GPN-COSTS).

Note: Entry of orders is dealt with in Rule 39.32 of the Federal Court Rules 2011.

Background

Background to the litigation

Full text does not contain this section.

Evidence

Evidence Before The Court

Full text does not contain this section.

Decision

Reasons for decision

By a decision made on 1 May 2018, the Minister declined to revoke the Cancellation Decision. Written reasons were supplied in support of that decision (hereafter, the “Non-Revocation Decision”). On 10 May 2018, the applicant filed an application under s 476A of the Act for judicial review of—that is to say, for prerogative relief directed at—the Non-Revocation Decision. That application was initially lodged in the court’s Western Australian registry. Not long after it was filed, it was transferred to the Victorian registry and assigned to a docket judge. In July 2018, the application was amended by leave. It was later reallocated to a different docket judge. Upon my appointment to the court, the matter was reallocated to my docket and was listed for hearing in October 2019. That hearing was adjourned by consent and rescheduled. Ahead of that rescheduled hearing, the applicant filed a further amended application, upon which he was, with the Minister’s consent, given leave to rely. By his further amended application, the applicant alleges that the Non-Revocation Decision was the product of jurisdictional error. Three bases are advanced in support of that central contention, namely that, in making his Non-Revocation Decision, the Minister:(1)failed to consider that a reason why the Cancellation Decision ought to have been revoked was that the applicant would otherwise be removed to Burundi, where he would be exposed to risks of harm that would give rise to a contravention or contraventions of Australia’s obligations of non-refoulement;(2)made an error of the kind identified in Minister for Home Affairs v Omar (2019) 272 FCR 589 (“Omar”; Allsop CJ, Bromberg, Robertson, Griffiths and Perry JJ), in that he did not genuinely consider the applicant’s submission that, if returned to Burundi, he was at risk of being harmed or killed; and(3)made a finding for which there was no rational or probative evidence, namely that the applicant would, after a “period of adjustment…[be] integrated back into [Burundi] society”. For the reasons that follow, I do not accept that any of the applicant’s contentions is made good. The application will be dismissed with the usual order as to costs.THE LEGISLATIVE SCHEME Section 501 of the Act identifies circumstances in which the Minister may—and, in some cases, must—cancel a visa on character grounds. Relevantly, it provides as follows:501 Refusal or cancellation of visa on character grounds…(3A) The Minister must cancel a visa that has been granted to a person if:(a)the Minister is satisfied that the person does not pass the character test because of the operation of:(i)paragraph (6)(a) (substantial criminal record), on the basis of paragraph (7)(a), (b) or (c); or(ii)paragraph (6)(e) (sexually based offences involving a child); and(b)the person is serving a sentence of imprisonment, on a full time basis in a custodial institution, for an offence against a law of the Commonwealth, a State or a Territory.…Character test(6) For the purposes of this section, a person does not pass the character test if:(a)the person has a substantial criminal record (as defined by subsection (7))……Substantial criminal record(7)For the purposes of the character test, a person has a substantial criminal record if:…(c)the person has been sentenced to a term of imprisonment of 12 months or more…

Ratio Decidendi

Legal Principle Established

The facts before me do not warrant the drawing of an inference that the Minister failed to consider (or to meaningfully consider or engage with, or to give “real consideration” or “genuine consideration” to, or otherwise to take account of, in any of the other ways that the authorities describe) the contentions that the applicant advanced as to what might happen to him if he is removed from Australia. It is far more likely that the Minister simply did not accept that the risks to which the applicant adverted (and of which the Minister was, on any view, conscious) gave rise to “another reason” for the purposes of s 501CA(4)(b)(ii) of the Act: in other words, that he addressed the applicant’s contentions in the manner that the full court described in Buadromo (above, [44]). That being the case, it is not appropriate to—and I do not—infer any want, on the Minister’s part, of relevant consideration of the point.THE “INTEGRATION” FINDING As has already been noted (above, [12]), the applicant sought to make much of the difficulties that would befall him if he were returned to Burundi. In the reasons published in support of the Non-Revocation Decision, the Minister made the following observations:28. In coming to my decision about whether or not I am satisfied that there is another reason why the original decision should be revoked, I have had regard to the impediments that [the applicant] will face if removed from Australia to his home country of Burundi in establishing himself and maintaining basic living standards.29. [The applicant] is a young man of 24 years who does not suffer from any diagnosed medical or psychological conditions, although he has a history of alcohol and cannabis abuse. 30. I note [the applicant] has advised that he has no known family members or support in Burundi. I accept that he will face financial and practical hardship in establishing himself and maintaining basic living standards, and will undergo a period of adjustment, at least initially, until he is integrated back into its society.31. I acknowledge that [the applicant] is likely to experience practical and emotional hardship if he is removed from Australia and thereby separated from his mother sister and step-father.32. I find that [the applicant] will have similar levels of access to any available medical or economic support services that are generally available to other Burundi citizens in a similar position as [the applicant], although I recognise that these may be of a lower standard than those available to him in Australia. The applicant complains that the conclusion recorded in [30] of those reasons—that the applicant would “…undergo a period of adjustment, at least initially, until he is integrated back into [Burundi] society”—was one for which there was no evidential basis. By his written submissions to the court, he complained that (emphasis original):…there was absolutely no evidence to support a finding that the applicant would ever be “integrated back into” Burundi society, at least insofar as that conveys the notion that the applicant would establish his basic economic and social needs. How, one might ask, did the Minister expect that to occur? With the applicant having no family or social support in Burundi. With him possessing no meaningful skills to sell on the market. When he suffers from alcoholism, as well as from his traumatic experiences. When, as he had claimed but the Minister failed to consider except in a mechanical or formulaic way, he faced discrimination and risk of serious harm or death by reason of his mixed racial identity? The conclusion that the applicant would “integrate back” into Burundi society had no foundation in evidence and, as in Hands, exhibits jurisdictional error.